detention of juveniles in illinois...the illinois juvenile justice commission tracks the use of...

1

DETENTIONOFJUVENILESINILLINOIS

RecommendationstoRight-SizeDetentionthroughReformsandFiscalIncentivestoDevelop

Community-BasedAlternatives.

April,2018

JuvenileJusticeInitiative518DavisStreet,Ste.211Evanston,Illinois60201

847-864-1567www.jjustice.org

ElizabethClarke,President

ElizabethKooy,PolicyResearchAnalystSaraBalgoyen,IndependentConsultant

2

TABLEOFCONTENTS

ExecutiveSummary……………………………………………………………………………………………………3SummaryofRecommendations………………………………………………………………………………………4WhatisJuvenileDetention?………………………………………………………………………..6

ResearchDocumentsthatDetentionofJuvenilesisHarmful…………………………7

NegativeConsequencesfromJuvenileDetentionStatesReduceDetention#’sAmidConcernsrePoorOutcomesJDAI–StatesCreateAlternativestoDetention

ILStateDollarsEncourageDetention…………………………………………………………..9 StatuterequiresStatetoreimbursebasedon#DetentionStaff NostatefundingstreamforalternativessofiscalincentivetodetainIllinoisUseofJuvenileDetention–RandomandDisparate………………………….13

DecisiontoDetainaChildisCompletelyDiscretionaryPolicehaveWideDiscretionto“Adjust”CasestoavoiddetentionNouniformpracticeProfoundracialdisparitiesElementary&MiddleSchoolAgeChildrenPlacedinDetentionMajorityofjuveniledetainedfornon-violentoffenses

Lackofadequatereview&protectionsforyouthindetention……………………21

Noweekend/holidayreviewofdecisiontodetainLackoftransparency–littlepublicreportingofdetentionpracticesTroublingconditionsofdetentionLackofoversightofdetention

ConclusionandRecommendations…………………………………………………………………………………..24-25AppendixA–MapofJuvenileDetentionCentersinIllinois

3

ExecutiveSummaryJuvenileDetentionisjailforkids.Researchconsistentlyrevealsthatevenshortstaysinajuveniledetentionfacilityhasnegativeoutcomes,includingbehavioralheathimpactsandeducationdisruptions.Thestudiesalsoconsistentlyrevealthatdetentionactuallyincreasesrepeatoffending.Yet,statedollarssupportandencouragetheuseofdetention,bysubsidizingdetentionstaff.Thereisnostateplanorfiscalinvestmenttoencouragetheuseofalternativestodetention,despitebetteroutcomesforfewerdollars.Despitethelackofstateencouragement,severalofthelargercountiesincorporatedpoliciesandpracticestoreducerelianceoncostlyout-of-homedetention.Theresultsarehighlyencouraging–lowercostswithbetteroutcomeandmorepublicsafety.ItistimeforIllinoistoencourageallcountieswithadetentioncentertomakesimilarshiftsbyencouragingthedevelopmentoffiscalincentivesforalternativestodetention,therebyreducingtherelianceonjuveniledetentionandmakingitalastresort.ThisreportexaminesthecurrentuseofjuveniledetentionacrossIllinois,reviewsresearchontheimpactfromdetentionofjuveniles,andreportsonthecurrentstatefiscal,oversightandadministrativeinvolvementinjuveniledetention.ThereportexaminesbestpracticesinIllinoisandacrossthenation.Finally,thisreportincludesaseriesofrecommendationsto“right-size”juveniledetentioninIllinois.WewanttoexpressourgratitudetotheIllinoisJuvenileJusticeCommission,whichreportsannuallyontheuseofjuveniledetentioninIllinois.WeareparticularlygratefultoSusanWitkin,whohassocapablyandgenerouslymanagedthejuveniledetentiondatabase(JMIS)overthepasttwodecades.WealsowanttoacknowledgethedebtweallowetoDr.LindaTeplinandherteamatNorthwesternUniversity,forherground-breakinglongitudinalresearchdocumentingthenegativeoutcomesfromjuveniledetention.Inaddition,noreportwouldbecompletewithoutgratitudetoboththeAnnieECaseyFoundationfortheirJuvenileDetentionAlternativesInitiative,andtotheMacArthurFoundationfortheirdemonstrationprojectsunderModelsforChangeandtheirPathwaystoDesistanceResearch.Wearedeeplygratefultothevisionaryjuvenileprobationleadersandjudiciarywhopilotedsomanysuccessfulalternativestodetentionacrossthestate.Finally,wearegratefultotheNationalJuvenileDefenderCenterfortheirextensivetrainingmaterialsandleadershiptoensurethatlawyersrepresentingjuvenileshavethetoolsandresourcesnecessarytoadvocateforalternativestodetentionandtoensurethatdetentionisusedonlyasalastresortandforasshortatimeaspossible.

4

SummaryofRecommendations

RECOMMENDATION#1:Requirethatjuvenilejudgesandlawenforcementexhaustalllessrestrictivealternativesbeforeusingjuveniledetention(ascurrentlyrequiredbystatutepriortocommitmenttoIDJJ)andinsistonannuallyevaluated,consistentandvettedscreeningtoolstosupportthediscretionarydecisions.RECOMMENDATION#2:Reducedisparitiesacrossthestatebycreatingadatafocusedplantoaddressingalldisparitiesincludingeconomic,educational,racial,andgeographic,inordertoensurethatsimilarlysituatedyoutharetreatedequally.

RECOMMENDATION#3-Raisetheminimumageofdetentionto13acrossthestateinordertoenddetentionofelementaryandmiddleschoolagechildren.

RECOMMENDATION#4–Reducerelianceondetention&ensureproportionalitybydoingthefollowing:

- Ensurecompliancewithexistingstatelawprohibitingdetentionforstatusoffenses.

- Prohibitdetentionfornon-violentoffensesincludingpropertyanddrugoffenses.- Endtheuseofdetentionforviolationsofprobationbyutilizingintermediate

communitybasedsanctions.

RECOMMENDATION#5–Require24/7reviewofthedecisiontodetainachild.Ensurethereisapaneloftrainedandresourcedlawyerswhoareavailableontheweekendacrossstatetobepresentinpersonwithyouthtorepresentthemindetentionreviewhearings.

RECOMMENDATION#6–Ensurepublicandindependentoversightofjuveniledetentionthroughtimelyandpublicreportingoftheuseofdetention,throughannualpolicyanalysisofthedatawithrecommendationsforimprovement,andthroughroutinecivilmonitoring.

RECOMMENDATION#7–Revisestandardsofdetentiontoensurecompliancewithnationalandinternationalbestpracticeandhumandignity.

5

Introduction

Illinois,homeoftheworld’sfirstjuvenilecourt,haslongbeenaleaderinJuvenileJustice.IllinoishasbeenattheforefrontwithreformslikeRedeployIllinoistoreducejuvenileincarcerationbyshiftingfiscalincentivestocommunityalternativestojuvenileprison.Unfortunately,Redeployonlyappliesatthebackendofajuvenilecaseatsentencing,notatthebeginningwhenyoutharefirstarrestedanddetained.Whenjuvenilesarefirstarrested,theyareplacedinjailsthatarecalledjuveniledetentioncenters.Thesecounty-runfacilitiesaredependentonstatedollarsthatencouragedetention–thereisnoRedeployparalleltoshiftfiscalincentivestoencouragelocalcommunitiestoreducedetentionutilization.TheStateLegislatureandlocalcountieshavestruggledtoalignjuveniledetentionwithbestpracticeandpolicies.Legislativeproposalsrangefromraisingthelowerageofdetentiontoaddressingthetimelinessofdetentionreview.Yet,thelackofaconsistentstatepolicycoupledwiththehandcuffofstatefundingthatsubsidizesdetentionstaff,continuetoactivelyencouragetheuseofjuveniledetention.ThispolicypaperistheresultofaseriesofdiscussionsandresearchbytheJuvenileJusticeInitiative.TheJuvenileJusticeInitiativeisastatewide,nonprofitpolicyadvocacyorganization,dedicatedtoensuringthatallchildreninconflictwiththelawreceivefairtreatment,withdetentionasalastresultandforasshortatimeaspossible.Thispaperexaminesresearchtoexplainwhypre-trialdetentionofjuvenilesissoharmful,identifiesthefiscalincentivesthatactuallyencouragedetentionratherthanhelpingcountiesbuildupcontinuumsofcommunityalternatives,reviewscountiesthatsuccessfullyreducedrelianceondetentionbyfollowingandimplementingnationallyacclaimedpoliciesandpractices,andendswithaseriesofrecommendationstobetteralignjuveniledetentioninIllinoiswithbestpracticeandthemosteffectivepolicies.Weurgelegislatorstoconsidertheinformationandrecommendationsinthisreporttocreatestatewidefiscalincentivestoencouragebestpracticestoreducetherelianceonjuveniledetention.

6

WhatisJuvenileDetention?Answer-JailforJuvenilesDetentionforjuvenilesistheequivalentofjailforadults.Juveniledetentionfacilitiesarecountyoperated,short-term,lockedfacilitiesforthedetentionofjuveniles.Juveniledetentionfacilitiesaretheequivalentofjails.Thefacilitieshaveheavyirondoorsandjuvenilesareplacedinuniforms,transportedinshacklesandlockedinindividualcells.Theyaresubjecttodisciplineincludingsolitaryconfinement.Programmingindetentioncentersisinconsistentandstatestandardsareminimal.Illinoishas16countyoperatedjuveniledetentionfacilities(Adams,Champaign,Cook,Franklin,Kane,Knox,Lake,LaSalle,Madison,McLean,Peoria,Sangamon,St.Clair,Vermilion,WillandWinnebago).TheStatesubsidizesdetentioncenterstaff($35.9millionindetentionstaffreimbursementinSFY16),andthecountyfundstherest.Somecountydetentioncentersfurthersubsidizethedetentioncenteroperationsbychargingsurroundingcountiestodetaintheirjuveniles.

Juveniledetentioncentersareintendedtotemporarilyhouseyouthwhoposeahighriskofre-offendingbeforetheirtrial.InIllinois,thatmeanstheyposean“immediateandurgent”risk(705Ill.Comp.Stat.§405/5-140).TheIllinoisJuvenileJusticeCommissiontrackstheuseofjuveniledetention.In2016,therewere10,042juveniledetentionadmissions.Thiswasdown15%from2012,anddown54%from1998.(IJJC2000Detentionreportand2016detentioncomparisonreport)1

1TheStatusofJuvenileDetentioninIllinois,AnnualReport,1998,NationalJuvenileDetentionAssociation;http://ijjc.illinois.gov/sites/ijjc.illinois.gov/files/assets/IJJC_2015-2016%20Detention%20Data%20Comparison%20Summary.pdf

7

Research-detentionofjuvenilesisharmfulTheNationalInstituteofJusticereleasedareportinOctober2016,TheFutureofYouthJustice:ACommunity-BasedAlternativetotheYouthPrisonModelcallingfortheclosureofalljuvenilejailsandprisons,noting:America’slongstandingyouthprisonmodel,whichemphasizesconfinementandcontrol,exacerbatesyouthtraumaandinhibitspositivegrowthwhilefailingtoaddresspublicsafety.NegativeConsequencesfromjuveniledetention.Theimpactofdetentionofchildrenundertheageof18hasbeenstudiedextensively.Asurveyofthestudiesrevealsthatevenshortperiodsoftimeindetentionhaveaprofoundlynegativeimpactonyoungpeople’slifeoutcomes,rangingfrommentalhealthdisturbancestoeconomicdisadvantages.TheJusticePolicyInstitutereviewedthestudiesinareportTheDangersofDetention,andnotedthatEconomistshaveshownthattheprocessofincarceratingyouthwillreducetheirfutureearningsandtheirabilitytoremainintheworkforce……(and)thereiscredibleandsignificantresearchthatsuggeststhattheexperienceofdetentionmaymakeitmorelikelythatyouthwillcontinuetoengageindelinquentbehavior,andthatthedetentionexperiencemayincreasetheoddsthatyouthwillrecidivate.PriorIncarcerationwasagreaterpredictorofrecidivismthancarryingaweapon,gangmembership,orpoorparentalrelationship.2Amorerecentarticlesummarizedtheresultsofastudyexamining35,000juvenileoffendersoveraten-yearperiodinChicago.3Theresearchersexaminedtheoutcomesfromsimilarlysituatedyouthassignedrandomlytojudgeswithdifferentsentencingtendencies.Somejudgesweremorelikelytousedetention,whileotherswerelesslikelytodetain.Theresearchersfoundthattheperiodsofdetentioninterruptedschool,makingitlesslikelythatyouthreturnedtoschool–especiallyiftheywerearoundage16.Thekidswhogotojuveniledetentionareveryunlikelytogobacktoschoolatall,saidoneoftheresearchers,JosephDoyle,aneconomistatMITSloanSchoolofManagement.Infact,thestudyfoundthatjuveniledetentionlowershighschoolgraduationratesby13%,andincreasesadultincarcerationby23percentagepoints.AsimilarlongitudinalstudytrackedyouthdetainedinthejuveniledetentioncenterinCookCounty,andfoundtheyoftenstruggledwitharangeofissuesyearsafter

2JusticePolicyInstitute,TheDangersofDetention:TheImpactofIncarceratingYouthinDetentionandOtherSecureFacilities,BarryHolmanandJasonZiedenberg.3http://news.mit.edu/2015/juvenile-incarceration-less-schooling-more-crime-0610

8

releasefromdetention.4Dr.LindaTeplinledateamofresearchersatNorthwesternUniversitywhotrackedmorethan1,800youthadmittedtotheCookCountyJuvenileDetentionCenterfrom1995to1998.Theaverageageoftheyouthwas15years,andtheywereinterviewedfiveandtwelveyearsafterdetention.Theresearchfound:

Ø Morepsychiatricdisorders-Alongitudinalstudyof1,895childrenbetweenages10and18whoweredetainedintheCookCountyDetentionCenterbetween1995and1998foundthatfiveyearsafterthefirstinterview,morethan45%ofmalejuvenilesand30%offemalejuvenileshadoneormorepsychiatricdisorders.5

Ø Highermortalityrates-Thesamelongitudinalstudyfoundthatthemortality(death)rateforyouthdetainedinCookCountywasmorethanfourtimestherateforyouthinthegeneralpopulation.6

Similarstudiesnote:

Ø HigherRepeatOffendingRatesamongchildrenwhohavebeendetained.Detentionactuallyincreasesthelikelihoodachildwillrecidivate,especiallywithyouthwhoareconfinedbasedonlowleveloffending.7

Ø Notcost-effective-TheJusticePolicyInstitutealsofoundthatjuveniledetentionisnotacost-effectivewaytopromotepublicsafetyormeettheneedsofyoungpeople.

StatesReduceDetentionAmidConcernsaboutPoorOutcomes.AccordingtoAnnieE.Casey’sJuvenileDetentionAlternativesInitiative[JDAI],in2016therewere164jurisdictionsintheU.S.participatingindevelopingalternativestodetention,andthesitesdocumentedreductionsindetentionof43%.8Thesefindingsheldtrueforbothurbanandnon-urbancommunities,andacross32states.TheseJDAIsitesalsoreportedsignificantreductionsinjuvenilecrimealongwiththereductionindetentionuse–again,consistentwiththeresearchthatdetentionincreasescriminaloffending,whiledetentionalternativessupportreductionsinjuvenilecrime.

4https://acestoohigh.com/2017/01/16/years-after-juvenile-detention-adults-struggle-study-finds/5OJJDPBulletin,Sept.2015–PsychiatricDisordersinYouthAfterDetention,Dr.LindaTeplin.6OJJDPBulletin,Sept.2015–ViolentDeathinDelinquentYouthAfterDetention,Dr.LindaTeplin.7http://www.pathwaysstudy.pitt.edu/documents/OJJDP%20Fact%20Sheet_Pathways.pdf8http://www.aecf.org/m/resourcedoc/aecf-jdaiat25-2017.pdf#page=5

9

JDAIencouragesstatestoexaminethereasonsyoutharebeingsenttodetention,andcreatealternativestoaddressunderlyingissues.InOhio,TheJDAIInitiativefoundmanychildrenwerebeingsenttodetentionbasedondomesticviolencecases.Ohio’sJDAIAdministratorLurieexplainedthatcountieswereabletocreatealternativestoaddresstheunderlyingfamilyconflictissues,andthusavoidsendingkidstodetention.9Aswillbeexaminedlaterinthisreport,Illinoiscountiesthatinvestedinjuveniledetentionalternativesexperienceddramaticreductionsindetentionusagealongwithlowercostsandbetteroutcomes.Countiesthatchoseinsteadtobuild/expanddetentionbedsarestrugglingtodaywithhigheroperationalandstaffingcostsintheirdetentionfacilities.

IllinoisStateDollarsEncourageDetentionCurrentlytherearesignificantstatefiscalincentivesencouragingIllinoiscountiestodetainyouth–butnoincentivestodivertyouthawayfromdetentiontoalternatives.Statedollarsreimbursecountiesfordetentionstaff–Juveniledetentioncentersarefundedbytheirlocalcounty,butbylaw,countiesaretobereimbursedwithstatedollarsforaportionofthesalariesforthedetentioncenterpersonnel-seetheIllinoisProbationandProbationOfficersAct:

730ILCS110/15(4)(c):The[ProbationandCourtServices]Divisionshallreimbursethecountyorcountiesforprobationservicesasfollows:…

(c)100%ofthesalaryforallsecuredetentionpersonnel….Thegreaterthenumberofyouthheldinadetentioncenter,thegreaterthenumberofstaffandthusthegreaterthecountyreimbursement.Thus,thestatefiscalincentivesencouragejuveniledetention–ratherthanencouragingalternatives.Thestatereimbursementissubstantial.Thedetentionreimbursementtotal,asdetailedincorrespondencewithstatelegislators,was$35,976,809inSFY16.TheCourtwebsitestatesthatin2017thecountiesreceivedabout85%ofeligiblefundingreimbursement.10TheCookCountybudgetproposalfor2018,notedthatsalariesforthepersonnelintheCookCountyJuvenileTemporaryDetentionCentermadeup80%oftheoverallcostofthedetentioncenter.11If,asinCookCounty,about80%ofthejuveniledetentioncenterbudgetconsistsofpersonnelcosts,andifthestatesubsidizesabout85%ofthepersonnelcosts,thenthestateissubsidizingovertwo-thirdsofthecountyjuveniledetentioncentercosts.

9http://www.publicnewsservice.org/2017-11-02/juvenile-justice/alternatives-to-youth-detention-success-highlighted-in-ohio/a60113-110http://www.illinoiscourts.gov/General/Funding.asp11https://www.cookcountyil.gov/Budget

10

CountiesinIllinoismadecriticaldecisionsregardingdetentioninthe1990’s.Inthe‘90’stherewasanincreaseintheuseofjuveniledetention–from15,985totaladmissionsin1990to18,541admissionsin1998.12Theincreaseconvincedsomecountiestobuild/expandjuveniledetentionfacilities.Illinoisjoinedwhatwasanationalprisonconstructionboom,andgrewthenumberofcountyjuveniledetentioncentersfromsixto17intheyearsbetween1990and2003.13Thechartonthefollowingpagedemonstrateshowdramaticallycountiesoverbuilt.Injustonedecadeinthe1990’s,twelvecountiesbuiltneworexpandedexistingdetentioncenters.By2016,alltwelvecountieshadaveragedailypopulationsbelowthenumberofbedsbuiltinthe‘90’s.Bycontrast,othercountiesconcentratedonreducingthenumberofjuvenilesplacedindetention.Onecounty(DuPage)wasevenabletoclosetheirdetentionfacility.Todaythenumberofjuvenilesplacedindetentionbythesecountiesremainssmall.Somecountiesarepayingoffbondsthatwereusedtobuild/expanddetentioncenters.MostoftheIllinoisjuveniledetentioncenterswerebuiltorexpandedinthelate1990’s/early2000.Thiswaspartofanationaltrend:

…attheheartoftheViolentCrimeControlandLawEnforcementActof1994wasaprogramthatprovidedbillionsinfederalfundsforstatestobuildorrenovateprisons.Withthisfunding,morethanhalfofthestatesbuilt,expanded,orrenovatedyouthprisonsanddetentionfacilities,andcontractedforadditionaldetentionandcorrectionalbeds.14

Manyofthecountiesintentionallyexpandedtheirdetentioncapacitywiththethoughtthatdetentionusagewouldexpandandthatsurroundingcountieswouldpaytousetheirfacility.Instead,detentionusagedecreasedandcountieswereleftwithcostlybondpayments.OneexampleisVermilionCounty,whichisrequiredtomake$300,000bondpaymentsannuallyonitsjuveniledetentionfacilitythru2019,accordingtoits2015-16budget.15

12TheStatusofJuvenileDetentioninIllinois,AnnualReport,1998,NationalJuvenileDetentionAssociation

13 Scott,RobertandSaucedo,Miguel(2013)"MassIncarceration,theSchool-to-PrisonPipeline,andtheStruggleOver“SecureCommunities”inIllinois,"JournalofEducationalControversy:Vol.7:No.1,Article7.Availableat:hps://cedar.wwu.edu/jec/vol7/iss1/7

14NationalInstituteofJustice–TheFutureofYouthJustice,Oct.,2016, http://www.aecf.org/m/resourcedoc/NIJ-The_Future_of_Youth_Justice-10.21.16.pdf15http://www.co.vermilion.il.us/ctybrd/2015 2016 Budget.pdf

11

ILCountyJuvenileDetentionFacilities16CountyJuv.DetentionCenter

OriginalBedCapacity&yearbuilt

Expansion&yearexpanded

ADP(AverageDailyPopulation)1999

ADPin2016

%ChangeinADP

1.Adams 20beds1963

30beds2001

16.1 9.8 64%Decrease

2.Champaign 10beds1954

40beds2000

10.4 19.3 46%Increase

3.Cook 498beds1973

none 555.6 296.9 87%Decrease

4.Franklin 38beds2003

none 15.4

5.Kane 80beds1998


6.Knox 12beds1917

39beds‘69&‘91

48.1 20.0 141%Decrease

7.Lake 48beds1996

24bedincreasepostponed

38.8 31.7 22%Decrease

8.LaSalle 14beds1982


9.Madison 21beds1969

39beds1995

38.9 13.9 180%Decrease

10.McLean 26beds1993

none 22 21.4 3%Decrease

11.Peoria 16beds1976

63beds1999

26.7 36.5 27%Increaase

12.Sangamon 10beds1979

48beds2000

10.7 21.2 50%Increase

13.StClair 36beds1980

53beds1999

51 13.3 283%Decrease

14.Vermilion 26beds2000

none 20.2

15.Will 102beds1999


16.Winnebago

32beds1992

48beds1996

56.8 47.4 20%Decrease

StateTotal 1,096.3 650.7 68%Decrease

16SOURCE:TheStatusofJuvenileDetentioninIllinois:annualreport,NationalJuvenileDetentionAssociation,June2001;ILJuvenileDetentionDataReport,IllinoisJuvenileJusticeCommission,2016.

12

CLOSED:DuPage-a30bedfacilitybuiltin1971,expandedto96bedsin1999,closedin2012andADPin2015was12.5.

JuvenileDetention–aCostlyEnterpriseforCountiesThenewestdetentioncenter,inFranklinCounty,hasstruggledtofindfundsforoperationfromthebeginning.AnewsreportfromMayof2003reportedthatthenew$4.3millionFranklinCountyJuvenileDetentionCenterwasatriskofhavingnofundstoopen,duetostatebudgetcutbacks.“Atstakeinthenumbercrunchingis$860,000infundingtooperate”thedetentioncenterbyreimbursingthecountyfordetentioncenterstaff.17ThearticlegoesontonotethatFranklinCountyborrowed$3milliontohelpbuildthecenter,resultinginanannualpaymentof$250,000.Thecountyexpectedthedetentioncentertogeneraterevenuetohelppayoffthedebt,buttherevenuedidnotmaterializeandthecountyisleftwiththedebtonthefacility.Researchshowsyouthwhoaredetainedaremorelikelytorepeatoffend–andrepeatoffendingiscostlyforcounties.Thecostsincludethoserelatedtothoseharmed(thevictims)aswellasthecommunity(i.e.taxdollars).RecidivismratesacrosstheUSarebetween60-75%within3yearsofconfinementandaccordingtotheJusticePolicyInstitutethevictimandtaxpayercostsfromrecidivismduetoyouthincarcerationcanreach$7.034billionin2011dollars.18

NoStateFiscalIncentivetoUse/DevelopAlternatives-WhiletheStateisrequiredtoreimbursecountiesfordetentionpersonnelcosts,thereisnoStatefundingtoencouragethedevelopmentofalternativestodetention.TheStatehasasuccessfulmodel–RedeployIllinois–butthefiscalincentivesinRedeployareusedtodivertjuvenilesatthedeependofthesystem,whohavebeenfoundguiltyandareatriskofbeingsenttojuvenileprison.TheStateneedstodevelopasimilarfundingincentivetoencouragecountiestodevelopandutilizecommunityalternativestojuveniledetention.Fiscalincentivestoavoidtheuseofdetentionwouldreducethenumberofchildrenwhoarelateratriskofbeingsenttojuvenileprison,andwouldpromotepublicsafetybyreducingrepeatoffending.

17http://thesouthern.com/news/local/franklin-juvenile-detention-center-s-fate-uncertain-but-construction-continues/article_3bcde73c-9949-57b3-99a2-38a5fda7e37a.html18http://www.justicepolicy.org/uploads/justicepolicy/documents/sticker_shock_final_v2.pdf

13

IllinoisUseofDetention–RandomandDisparateDecisiontoDetainaChildisCompletelyDiscretionaryThereissomeencouragementfromthecourtstousescreeningtoolstomakedecisionswhethertodetainornotdetainachild,butthesetoolsvarygreatlyandthereisnostateoversightoftheuseofdetention.Thus,whilethemajorityofIllinoiscountiesrarelydetainjuveniles,ahandfulofcountiesusedetentionatalarmingrates.Policehavewidediscretionto“adjust”casesandavoiddetention.Thepolicemaketheinitialcallfordetention–andunder705ILCS405/5-405(3)policehavewidediscretionindecidingwhenandwhotodetain:

405/5-405(3)ThejuvenilepoliceofficerMAYtakeoneofthefollowingactions:A. stationadjustmentandreleaseoftheminor;B. releasetheminortohisorherparentsandreferthecasetoJuvenile

Court;C. ifthejuvenilepoliceofficerreasonablybelievesthatthereisanurgent

andimmediatenecessitytokeeptheminorincustody,thejuvenilepoliceofficershalldelivertheminorwithoutunnecessarydelaytothecourtortotheplacedesignatedbyruleorbyorderofcourtforthereceptionofminors.

PoliceDiversion(Station-adjustments)arewidelyused.Police“station-adjustments”canincludeaninnumerablerangeofinformaldispositions–anythingfromcleaningupthegraffititoagreeingtocounseling,restitution,etc.Thisprocessisthemostcommonformofcommunitypolicingwherepoliceworkwiththefamilyandvictimtoinformallyresolvedisputes.TheIllinoisMentalHealthOpportunitiesforYouthDiversionTaskForceReportemphasizestheneedfordiversionstomentalandbehavioralhealthtreatment:

“Youthwithmentalhealthconditionsgetworseinjail,notbetter.Whenyoutharenotadangertothemselvesorothers,theyshouldbedivertedtocommunitybasedmentalhealthtreatment.”19

19https://static1.squarespace.com/static/59653faf099c014ab2324724/t/5a96305a8165f59f6321bb4d/1519792221453/NAMI-4478+TaskForceDiversionReport_L3.pdf

14

NoUniformStatewidePracticeDespitetheevidenceofthehighcostandtheprofoundlynegativeoutcomes,studiesinIllinoisrevealawidelydisparateuseofjuveniledetention.Somecountieshavesuccessfullylimiteddetention,whileothersusedetentionfrequently.AstheIllinoisJuvenileJusticeCommissionstatesinits2016reportonCY14Detention:

Detentionusagevariesconsiderablybyjurisdiction.Itisunclearwhyadmissionratesaredisparatefromcountytocounty,butthesedatashouldbeexaminedbypolicymakers.20

Asanexample,in2014,thecountyofWinnebagoheldanaverageof40.2childrenindetentiondaily.Inthesameyear,DuPageCountyhad3timesthepopulationofWinnebago,butheldonly16.4childrendaily.DespiteapopulationthreetimeslargerthanWinnebago,DuPageofficialsemphasizedalternativestodetentionanddetainedfewerthanhalfthenumberofjuvenilesthatWinnebagoCountydetained.Themajorityofcountiesinthestaterarelyusedetention-almosthalfofthecountiesinIllinois(44/102)detained10orfeweryouthin2016.21Builditandtheywillcome….Generally,countiesthatmaintainajuveniledetentioncentertendtohavehighernumbersofchildrenindetention.In2016,only5countiesdetainedanaveragenumberofmorethan20juvenilesperdayandall5countiesmaintainedadetentionfacility:

Cook–296.9 Winnebago–46.5 Peoria–23.9 Will–24.2 Lake–31.8 Yet,inthesameyear,twocountieswithpopulationssimilartoorgreaterthanthesecounties(DuPageandMcHenry)detainedsignificantlyfewerchildrenANDdidnothaveadetentionfacility.DuPagehadanaveragedetentionof12.3childrenperdayandMcHenry(withalargerpopulationthanWinnebago,MadisonandStClair)heldonly5perday.Bestpracticesinpreventionanddiversioncanreducetheneedfordetentioncenters.ManyalternativesareavailableincludingComprehensiveCommunity-BasedYouthServices(CCBYS),mentalhealthjuvenilejusticeinitiativealternativestodetention,andfacilitieslikeChampaignCounty’sYouthAssessmentCenter.CCBYSisa

20IllinoisJuvenileJusticeCommission,IllinoisJuvenileDetentionDataReportonCY2014Detention,Jan.,2016,Forwardtoreport.21Ibid.

15

statewide24/7crisisinterventionsystemismandatedtoserveyouthincrisis(runaways,lock-outs,beyondcontrolandinphysicaldanger)andalsoservesyouthinhigh-risksituations,andtheirfamilieswhenappropriate,accordingtotheirneedsandinkeepingwiththegoaloffamilypreservation,reunificationand/orfamilystabilization,orindependence,dependentupontheyouth'sneeds.But,thesevaryacrossthestatebasedonaccessandcapacitytoprovidetheappropriatesupports.St.Claircountyandothershavemadechangestoincluderestorativepractices,mentalhealthservicesandtraumafocusedsystemsofcaretodivertandsupportyouthandfamiliesincontactwiththejusticesystem.

NoUniformPracticetodecidewhentodetainachild.“Urgentandimmediatenecessity”isill-defined.TheIllinoisLegislaturerequiresthatapoliceofficer“reasonably”believethereis“urgentandimmediatenecessitytodetainortokeeptheminorincustody”isvagueandlimitless.Courtshavenotyetestablishedwhatdefines“urgentandimmediatenecessity”andthuspolicehavewidelatitudeondetaining.Widediscretionoccursevenatscreeningstage.Onceapoliceofficerdecidestodetainachild,acallismadetoprobation/detentionwhothenuseascreeningtooltoreviewthedetentiondecision.Thesescreeningtoolsvarywidelyacrossthestate–thereisnouniformscreeningtoolinIllinois,andeachlocalitycanchangetheirscreeningtoolanytimeandinanymanner.DevelopmentofScreeningTools–butnouniformity.Thevaguenessofthestatutorydefinitionofurgentandimmediatenecessity,combinedwithconcernsthatdetentionwasoverusedandunfair,ledtheAnnieE.CaseyFoundation’sJuvenileDetentionAlternativesInitiative(JDAI)tolaunchanationalcampaigntodevelopscreeningtoolsthatcouldinjectsomeproceduralfairnessintotheotherwiseunfettereddiscretionoflawenforcementtodetainchildren.CookCountywasoneofthepilotsitesforJDAI,andeventuallynearlyeverycountyinIllinoisdevelopedsomeformofascreeninginstrument.But,screeningtoolsarecomplex.Forexample,inclusionoffactorssuchaspriorarrestshavebeenshowntohaveraciallydisparateimpacts,sincestudiesrevealadisproportionaterateofarrestswithblackandbrownyouth.TheJusticeCenteroftheCouncilofStateGovernmentsnotesthat“toolscancontributetoracialdisparityifnotvalidatedorusedproperly.2222https://csgjusticecenter.org/reentry/posts/risk-and-needs-assessment-and-race-in-the-criminal-justice-system/

RECOMMENDATION#1:Requirethatjuvenilejudgesandlawenforcementexhaustalllessrestrictivealternativesbeforeusingjuveniledetention(similartostatutoryrequirementsregardingcommitmenttoIDJJ)andinsistonannuallyreviewed,consistentandvettedscreeningtoolstosupportthediscretionarydecisions.

16

ProfoundRacialDisparities: “Racialandethnicdisparities….arequitepronounced”.23“Quitepronounced”isanunderstatement.AcrossthenationandinIllinois,blackandbrownyouthareatasignificantlyhigherriskofbeingdetainedthanwhiteyouth.AccordingtotheUSCensus,asofJuly2015,14.7%ofIllinoisresidentsidentifiedasBlackand16.9%identifiedasLatinoorHispanic–atotalof31.6%.However,BlackandHispanicyouthwere71%ofalldetentionadmissionsin2015inIllinois.Statewidein2015,Black,Hispanicandmulti-racialchildrenmadeup76%ofthedetentionadmissions:

ILDetentionCenterAdmissionsbyRace/Ethnicity%2015

Mostyoungpeopleareallowedleewayfornormaladolescentbehaviorswithoutgettingentangledinthejusticesystem.However,youthofcolornationwidearemorelikelytobearrested,prosecuted,sentenced,andincarceratedforthesebehaviorsthanaretheirwhitepeers.“In2013,blackyouthweremorethanfourtimesaslikelyaswhiteyouthtobeincarcerated,NativeAmericanyouthweremorethanthreetimesaslikely,andLatinoyouthwerealmosttwiceaslikely”(Burns

23IllinoisJuvenileJusticeCommission,IllinoisJuvenileDetentionDataReportonCY2015Detention,2016.

WhiteHispanic12%

WhiteNon-Hispanic24%Black/

AfricanAmerican/Non-Hispanic

59%

Multi-RacialNon-Hispanic

3%

AllOtherRace

Ethnicity2%

17

Institute,2015).Theseprofoundracialdisparitiesarecitedasoneofthereasonsforanewnationalemphasisonendingjuveniledetention.24ChampaignCounty’sRacialJusticeTaskForcerecentlyreleasedareportandrecommendationsfocusedonreducingtheracialdisparitiesinthecounty’sjusticesystemincludingthejuveniledetentioncenter.Onerecommendationistoreducetheoverallrelianceondetentionbyreducingthedetentionpopulation.Thesupportforthisrecommendationisfoundinthereport:“InChampaignCounty,thenumbersaresimilartothenationalnumberswithyouthofcolorbeingtwo-to-threetimesmorelikelytobeadmittedtodetentionthantheirwhite/non-HispaniccounterpartsbasedonthestatewideDetentionReportcompletedbytheIllinoisJuvenileJusticeCommission(2016).Accordingtothe2015DetentionReport,ChampaignCountyhasthefifthhighestdetentionrate,percapita,ofallthecountiesinthestate[AppendixF].OfChampaignCounty’s398chargesleadingtodetentionin2015,fewerthan50%wereforviolentoffenses.In2015,ChampaignCountyhadthefourthhighestdetentionadmissionrateinIllinois,percapita,forAfrican-Americanyouthcomparedtoallothercountiesinthestate….ItisimperativethatChampaignCountyreducetheuseofjuveniledetentionwithafocusontheracialdisparityissuebyreducingthenumberofyouthbroughttotheJuvenileDetentionCenterpre-trialandthenumbersentencedtotheJuvenileDetentionCenter.”

24TheFutureofYouthJustice:ACommunity-BasedAlternativetotheYouthPrisonModelbyPatrickMcCarthy,VincentSchiraldi,andMiriamShark,October2016

RECOMMENDATION#2:Reducedisparitiesacrossthestatebycreatingadatafocusedplantoaddressingalldisparitiesincludingeconomic,educational,racial,andgeographic,toensurethatsimilarlysituatedyoutharetreatedequally.

18

EndDetentionofYoung(ElementarySchool)AgeChildrenAnotherparticularlytroublingissueisthecontinueduseofdetentioninIllinoisforchildrenundertheageof13.Illinoisstatutesallowchildrenasyoungas10tobedetainedinIllinois.AccordingtotheIllinoisJuvenileJusticeCommission,in2016,therewere127childrenundertheageof13admittedtodetention:Whilethenumberofyoungchildrenindetentionisrelativelysmall,theimpactoneachindividualchildisprofound.Separation,evenifonlyovernight,isprofoundlytraumaticforaten,elevenortwelveyearoldchild,whomaybespendingthenightawayfromhomeforthefirsttime.Theinterruptiontoschool,andtheisolationfromfamilyarebothextremelyharmful.Thenumberofchildrenundertheageof13heldindetentioninmostcountiesisminimalandhasdroppedovertheyears–itisnowtimetoenddetentionforthisyoungagegroup.WHATDETENTIONFEELSLIKETOACHILD:

TIMETOTURNOUTTHELIGHTS,byJaeeu,AzuelaSchool,Chicago

“Myproblemsallstartedwithbeinglockedupatage12.Ifeltlikethatwaswhatmylifewassupposedtobe.Idonotwantanymorechildrentohavetofeeldefinedbybeinglockedupatsuchayoungage.”Justin,now35yrs.oldandemployed

19

LEGISLATIVERESPONSETODISCOURAGEDETENTIONOFYOUNGCHILDRENInJanuaryof2016,PublicAct99-0254tookeffect,andrequiredcountiestosearchforalternativestodetentionforchildrenundertheageof13:

Aminorunder13yearsofageshallnotbeadmitted,kept,ordetainedinadetentionfacilityunlessalocalyouthserviceprovider,includingaproviderthroughtheComprehensiveCommunityBasedYouthServicesnetwork,hasbeencontactedandhasnotbeenabletoaccepttheminor.

PreliminarydatafromtheProbationDepartmentinCookCountyrevealsthislegislativechangehasbeensuccessfulinnearlyeliminatingthedetentionofchildrenundertheageof13,andindramaticallyreducingthenumberof13and14yearoldchildrenindetention.ReformssuchasHouseBillHB4543toraisethelowerageofdetentionfrom10to13areessentialtocreatepolicythatwillensurecommunity-basedalternativesaretheonlyoptionforyoungchildrenincontactwiththelaw.

OveruseofDetentionfornon-violentconduct.Thereareanumberofcategoriesofconductthatdonotrequire,andshouldnotresultindetention.

DatafromJMISrevealsthatin2016,75%oftheyouthdetentionswerefornon-violentoffensesincludingproperty,drugandprobationviolations.Twenty-two(22%)ofthedetentionadmissionsin2016wereforpropertyanddrugoffenses.Probationviolationsaccountedfor5.8%ofthedetentionadmissions.Andthecatch-allcategoryof“warrants”accountedfor26%ofalladmissions.DatafromJMISalsorevealsthattherearestilldetentionsforstatusoffenses–43detentionsforstatusoffensesin2016.NotethatthedetentionofstatusoffendersisexpresslyprohibitedundertheJuvenileCourtActin705ILCS405/5-401(3):

(3)Exceptforminorsaccusedofviolationofanorderofthecourt,anyminoraccusedofanyactunderfederalorStatelaw,oramunicipalorcountyordinancethatwouldnotbeillegalifcommittedbyanadult,cannotbeplacedinajail,municipallockup,detentioncenter,orsecurecorrectionalfacility.Juvenilesaccusedwithunderageconsumptionandunderage


20

possessionofalcoholcannotbeplacedinajail,municipallockup,detentioncenter,orcorrectionalfacility.

Probationviolationadmissionstodetentionareproblematicandneedfullerreviewandexplanation.Therewere600detentionadmissionsofviolationsofprobationin2016.Itisunclearwhethertheseweretechnicalviolations,orviolationscausedbyanarrestforanewoffense.Generally,aseriousviolentnewoffensewouldbeseparatelycharged,ratherthanhandledasaviolationofprobation.Thereislittledataonjuvenileprobationviolations,sanctionsandoutcomes,butlatelythelegislaturehasexpressedconcernthatsomejuvenileprobationsentencesaretoolong(mandatory5yearprobationforforciblefelonyoffenses),andpolicymakersarebeginningtoquestionwhetherprobationviolationsrepresentafailureofprobation,ratherthanafailureoftheyoungperson.Thelargenumberofdetentionadmissionsforprobationviolationshighlightstheneedforgreaterdataandtransparencyonthisissue.Warrantsrepresentanotherunchartedterritoryindetentionadmissions.In2016,warrantsrepresented26.4%oftheoveralldetentionadmissions.“Warrantsmaybeissuedbythecourtwhenitdeterminestheyouthmayendangerhim-orherself,orothers.”This,ofcourse,isdiscretionary.

RECOMMENDATION#4–Reducerelianceondetentionbydoingthefollowing:- Ensurecompliancewithexistingstatelawprohibitingdetentionforstatusoffenses.- Prohibitdetentionfornon-violentoffensesincludingpropertyanddrugoffenses.- Endtheuseofdetentionforviolationsofprobationbyutilizingintermediatecommunity

basedsanctions.

21

LackofAdequateReview&Protections

NoWeekendorHolidayReviewofDecisiontoDetainAdultsgetreview24/7.ApersonarrestedasanadultinIllinoishasarighttoreviewofthedecisiontoholdinjailbeforeajudge“withoutunnecessarydelay”.725ILCS5/109-1.

Juvenilereviewis40hoursexcludingweekends/holidays.However,apersonarrestedasajuveniledoesnothavethesamerighttoareviewofthedecisiontodetain.ByIllinoislaw,juvenileshavearighttoadetentionreview–butthatreviewisonlywithin40hoursexcludingweekendsandholidays.705ILCS405/5-415.[Priorto1999,thedetentionreviewhadtobeheldwithin36hours].Thismeansthatjuvenileshavetowaitlongerforareviewofthedecisiontodetainthem,thanasimilarlysituatedadult.Bestpracticeis24/7.Becausedetentioncanbetraumaticanddisruptivetoachild’slife,bestpracticerequiresareviewofthedecisiontodetainwithinaveryshorttimeframe.Nationally,theAnnieE.CaseyFoundationrecommendslimitingthetimeto24hoursincludingweekendsandholidays.25

WeekendReviewsuccessfulinCookCounty.TheCircuitCourtofCookCountyissuedanorderonOctober7,2016thatDetentionhearingsinthejuvenilecourtofthecircuitcourtforCookCountyshallbeheldeverydayoftheyear,includingweekendsandholidays.InNovemberof2016,theCookCountyJuvenileCourtbeganholdingdailydetentionhearings,includingweekendsandholidays.ThejudgesreportedataJuvenileLeadershipEventinthefallof2017thattheweekendreviewwassuccessful,resultinginanaverageof40%release,mostonelectronicmonitoring.

NewJerseyisagoodexampleofastatewithamodelstatute.TheNewJerseystatuterequiresadetentionhearingwithin24hoursincludingweekendsandholidays,andNewJerseyCourtRuleclarifiesthehearingshallbenolaterthanthemorningfollowingplacementincustody.N.J.Stat.Ann.§2A:4A-38(e)WeekendreviewhasoccurredinNewYorkCitysince2008.InPalmBeach,Florida,juvenilesheldindetentiongetadetentionreviewthenextday.Miami,Floridaholdsdailydetentionhearings.Similarly,inPimaCounty,Arizona,detentionhearingsarehelddaily.26

25http://www.aecf.org/m/resourcedoc/aecf-embeddingdetentionreform-2014.pdf26Burrell,Sue;The48-HourRuleandOverdetentioninCaliforniaJuvenileProceedings,07JJLPWinter2016.

RECOMMENDATION#5–Require24/7reviewofthedecisiontodetainachild.Ensurethereisapaneloftrainedandresourcedlawyerswhoareavailableontheweekendacrossstatetorepresentyouthinpersonduringdetentionreview.

22

LACKOFTRANSPARENCYANDOVERSIGHTCurrently,thereislittlepublicreportingofdetentionpracticesandnopublicoversightofdetentioninIllinois.

ReportingofDetentionPracticesTheJohnHowardAssociationofIllinoisreleasedareportontheDepkeJuvenileComplexinLakeCounty.Intheintroductiontothereport,JHAnoted:

Itisnowwellestablishedthatcollectingjuvenilejusticedataandmakingsuchdatareadilyavailabletothepublicareessentialtoensuringthejuvenileprogramsanddetentionfacilitiesfunctionsafelyandeffectively,andmakethebestuseoflimitedtaxpayerdollars.

Illinoishasastatewidedatacollectiontool-JudicialManagementInformationSystem(JMIS)-andanannualreportcreatedbytheIllinoisJuvenileJusticeCommissiontogatheroverarchingdata,butthereportscontain“justthefacts”withoutanypolicyanalysisorrecommendations.Additionally,thereisnoformalrequirementinIllinoistoensurethatlocalcountyjuveniledetentionandresidentialfacilitiesaresubjecttoindependentpublicoversightthroughroutinecivilmonitoring.27Apublicoversightbodyorombudspersonisavaluableresourcetoensuretransparencyandbestpractices.TheIllinoisDepartmentofJuvenileJusticeimplementedanombudsperson,startinginAugustof2015.Theombudspersonvisitsfacilities,meetswithyouth,familymembersandstafftoaddressinquiries,discussissuesandcomplaintsandhavedialoguethroughtalkingcircles.RecommendationsarethenpassedontotheDepartmentofJuvenileJustice.Asimilaroversightcapacityisessentialtoensurehumaneconditionsforyouthindetention.

27JohnHowardAssociationofIllinois,PromotingTransparencyandAccountabilityinJuvenileDetentionFacilities:AreportontheJHA’svisittotheDepkeJuvenileComplex,LakeCounty,IL,www.thejha.org


23

MinimalStandardsforJuvenileDetentionDespitedecadesoflitigationandattentiontodetentionconditionsbynationalmovementssuchastheJuvenileDetentionAlternativesInitiative,Illinoishasnotupdateditsstatestandardsforjuveniledetentionindecades.Asaresult,thestandardsrepresentabareminimuminrequirements–focusedonbasicphysicalstructuralissuessuchasadequateventilation–butlackingthemorerigorousdetailaddressedinmorerecentinspectiontoolssuchastheJDAIdetentioninspectionguidelines.Withnomeaningfuloversight,andthebareminimumofstatestandards,detentionconditionsareeffectivelyhiddenfromthegeneralpublic.Lackofadequateprogramming,education,familyaccess,andstafftrainingarejustafewofthepotentialissuesthatareunmonitored.TherecentNIJreportnotesthat“Justice-involvedyouthoftenhavehistoriesofabuseandfailurebyadultsaroundthemthataddtothecomplexitiesofnormaladolescentdevelopment.Thetraumamanyoftheseyoungpeoplehaveexperiencedmakesthemespeciallysensitivetoenvironmentaltriggers,andyet,manyarekeptininstitutionalenvironmentsthatseemdesignedtotriggertraumaandrage:longperiodsofisolation;harsh,sterilesurroundings;brightlights;aconstantdin;andanear-constantthreatofviolence.”28Thelackofoversightandattentiontothedetentionofyoungpeopleisparticularlystrikinggiventheincreasingattentionbythepublictoimprovingconditionsofconfinementforanimals.Lessonscouldbelearnedfromthemovementforhumanetreatmentofanimals,whichincreasinglyrequirepoultryfarmstobe“certifiedhumane”.Totheextentthatchildrenaredetained,thefacilitiesshouldbe“certifiedhumane”forchildren.

28NIJ,TheFutureofYouthJustice:ACommunity-BasedAlternativetotheYouthPrisonModel,Oct.2016.


24

ConclusionOverrelianceonjuveniledetentioninIllinoisisafailedpractice.Juveniledetentionisharmful,costly,andincreasesthelikelihoodofrepeatoffending.Currentlydetentionisoverusedfornon-violentoffenses,warrantsandprobationviolationsleadingtofurtherharmtoyouth,familiesandcommunities.Thiscanbeattributedtomanyreasonsincludingthelackofstandards,oversight,resourcesforcommunitybasedalternativesandwide-spreaddiscretionarypracticesthatcanbeadjustedwithproperpolicyinplace.Aslongagoas1973,theNationalAdvisoryCommissiononCriminalJusticeStandardsandGoalsconcluded:Theprison,thereformatory,andthejailhaveachievedonlyashockingrecordoffailure.Thereisoverwhelmingevidencethattheseinstitutionscreatecrimeratherthanpreventit.”AndtheCommissionwentontomakethefollowingrecommendation: Nonewinstitutionsforadultsshouldbebuiltandexistinginstitutionsforjuvenilesshouldbeclosed.Nat’lAdvisoryCmsn,1973.TheevidenceinIllinoiscontinuestosupportthe1973conclusionthatjuveniledetentionisafailure.Werealizethatclosingalldetentioncenterswithoutthecapacitytorespondtotheneedsofcommunitieswouldnotbehelpful,yet,itisvitalthatwecontinuetoreducethenumberofyouthwhoevercomeincontactwiththejuveniledetentioncenterbydevelopingfiscalincentivestodivertyouthtoappropriateoptionsthroughpolicyandoversight.

25

RECOMMENDATIONSReformerscomeandreformersgo.Stateinstitutionscarryon.Nothingintheirhistory

suggeststheycansustainreform,nomatterwhatmoney,whatstaff,andwhatprogramsarepumpedintothem.Thesamecrisesthathaveplaguedthemfor150yearsintrudetoday.Thoughthecastmaychange,theplayersgoonproducing

failure.-JeromeMiller,formerMass.SecretaryoftheDept.ofYouthServices.

RECOMMENDATION#1:Requirethatjuvenilejudgesandlawenforcementexhaustalllessrestrictivealternativesbeforeusingjuveniledetention(ascurrentlyrequiredbystatutepriortocommitmenttoIDJJ)andinsistonannuallyevaluated,consistentandvettedscreeningtoolstosupportthediscretionarydecisions.RECOMMENDATION#2:Reducedisparitiesacrossthestatebycreatingadatafocusedplantoaddressingalldisparitiesincludingeconomic,educational,racial,andgeographic,inordertoensurethatsimilarlysituatedyoutharetreatedequally.


RECOMMENDATION#4–Reducerelianceondetention&ensureproportionalitybydoingthefollowing:

- Ensurecompliancewithexistingstatelawprohibitingdetentionforstatusoffenses.

- Prohibitdetentionfornon-violentoffensesincludingpropertyanddrugoffenses.- Endtheuseofdetentionforviolationsofprobationbyutilizingintermediate

communitybasedsanctions.

RECOMMENDATION#5–Require24/7reviewofthedecisiontodetainachild.Ensurethereisapaneloftrainedandresourcedlawyerswhoareavailableontheweekendacrossstatetobepresentinpersonwithyouthtorepresentthemindetentionreviewhearings.



26

APPENDIXA